The “preface” or preamble to this Constitution is curious, for it is written as if Penn felt that the eyes of the court were upon him. The first two paragraphs form a simple excursus upon the doctrine of the law and the transgressor as expounded in St. Paul’s Epistle to the Romans: “For we know that the law is spiritual; but I am carnal, sold under the sin,” etc. From this Penn derives “the divine right of government,” the object of government being two-fold, to terrify evildoers and to cherish those who do well “which gives government a life beyond corruption (i. e., divine right), and makes it as durable in the world as good men should be.” Hence Penn thought that government seemed like a part of religion itself, a thing sacred in its institution and end. “They weakly err,” continues Penn, “that think there is no other use of government than correction; which is the coarsest part of it. * * * Men side with their passions against their reason, and their sinister interests have so strong a bias upon their minds that they lean to them against the good of the things they know.” The form, he concludes, does not matter much after all, “Any government is free to the people under it (whatever be the frame) where the laws rule and the people are a party to these laws.” Good men are to be preferred even above good laws. The frame of laws now published, Penn adds, “has been carefully contrived to secure the people from abuse of power.” In the Constitution which follows the preamble, Penn begins by confirming to the freemen of the province all the liberties, franchises and properties secured to them by the patent of King Charles II. After stating how the government was to be organized, he directed that the council of seventy-two members, was to be elected at once, one-third of the members to go out, and their successors elected each year, and after the first seven years those going out each year shall not be returned within a year. Two-thirds of the members constituted a quorum on all important matters, but twenty-four would suffice on minor questions. The Governor was to preside and to have three votes. All bills should be prepared and proposed by the Council for presentation to the General Assembly, which body, on the ninth day should pass or defeat such measures as presented. To be sure the Provincial Council also was an elective body, but the difference was in the fact that it was meant to consist of the Governor’s friends; it was an aristocratic body, and therefore not entirely representative. Aside from this fatal defect there is much to praise in Penn’s Constitution and something to wonder at, as being so far in advance of his age. Besides carefully defining and limiting the executive functions of the Governor and Council a wholesome and liberal provision was made for education, public schools, inventions and useful scientific discoveries.